Highlights 2012

OCHA led the establishment of humanitarian coordination mechanisms and supported the development of the Syria Humanitarian Assistance Response Plan (SHARP), as well as its revisions. This allowed the UN country team (UNCT) and humanitarian partners to develop a shared understanding of the humanitarian situation in Syria and define a clear response strategy.

OCHA supported the Regional Humanitarian Coordinator’s (RHC’s) discussions with the Government on access and partnerships. In doing so, OCHA helped to enlarge the humanitarian space.

Through its advocacy efforts, OCHA was instrumental in highlighting the plight of Syrian civilians and raising necessary resources.

Year in Review

2012 was marked by a continued political stalemate, parties’ increased radicalization and a further militarization of the conflict. This dynamic resulted in a continued and significant deterioration of the humanitarian situation: Between March and December, the number of people in need inside Syria quadrupled, from 1 million to 4 million. During the same period, the number of Syrian refugees in neighbouring countries multiplied more than tenfold, from about 50,000 to over 630,000.

Needs rose in all sectors. At the end of the year, over 2.5 million Syrians required food assistance, while many of the over 4 million affected people required non-food items and other essential assistance. Intense fighting and bombings in urban and predominantly civilian areas resulted in considerable damage to infrastructure, further reducing people’s access to essential services. At year-end, more than half of Syria’s public hospitals had been damaged and those that remained open were short of medical supplies. Water and sanitation systems had broken down, leading to a rapid spread of waterborne diseases, such as Hepatitis A and typhoid. One in five schools had either been destroyed or they were being used as a collective shelter. As the conflict took an increasingly brutal turn, the protection situation became alarming. The prolongation of the crisis and the deteriorating socio-economic situation had an increased impact on local communities, whose coping mechanisms reached saturation point. Their ability to help people in need plummeted.

The situation also had serious humanitarian, political and economic consequences in neighbouring countries and in the wider region.

OCHA focused on establishing inclusive coordination mechanisms, including an inter-sectoral coordination group and the facilitation of sectoral working groups. At the end of the year, those mechanisms were in place and functioning. OCHA also supported the RHC and the UNCT in developing a shared understanding of the humanitarian situation, and defining a clear and common response strategy. The success of those efforts was reflected in the SHARP issued in June and revised in August. The 2013 SHARP was launched in December.

OCHA supported the RHC and the humanitarian community in their efforts to secure the access of assistance to all those in need across the country. At the end of the year, aid was reaching millions of people in need in all Governorates, in both Government and opposition-held or disputed areas. However, significant gaps remained, with some areas still inaccessible for aid organizations.

OCHA and the RHC remained at the forefront of humanitarian advocacy efforts throughout 2012. Six Syria Humanitarian Forums were held in 2012, and many interviews were given to the media. Hundreds of multilateral and bilateral discussions at all levels were organized with key stakeholders. These efforts allowed OCHA to shed light on the plight of Syrian civilians, stress the importance of unimpeded access, reaffirm the impartiality, neutrality and independence of humanitarian action and help partners mobilize necessary resources.

Regarding humanitarian financing, the OCHA office supported the RHC and UN agencies in preparing CERF requests for over US$46 million to address the needs in Syria and neighbouring countries. At the same time, OCHA established the Emergency Response Fund (ERF) to ensure NGO partners had quick and flexible access to funding. At the end of the year, the ERF had already allocated almost $10 million to international and national NGOs in Syria and neighbouring countries. Throughout these processes, OCHA made sure that CERF and ERF allocations corresponded to strategic priorities, such as the winterization response.

OCHA’s achievements helped humanitarian organizations expand their reach to millions of Syrians in need across the country. However, serious challenges remained. Widespread violence and continued lack of humanitarian capacity in-country hampered OCHA efforts to lead much-needed needs assessments and establish inter-agency presences in key affected areas. While the RHC and OCHA’s efforts helped secure access to millions of people, several areas were still out of reach for relief agencies at the end of year. Despite OCHA’s efforts to mobilize resources, the underfunded SHARP was a major challenge throughout 2012.

Performance Framework 2012-13

RESULT 1: AN EFFECTIVE HUMANITARIAN COORDINATION SYSTEM ESTABLISHED IN COUNTRY

Indicator 1 Decisions taken by Humanitarian Country Team (HCT) led to improved delivery of humanitarian assistance to vulnerable people.

BASELINE 2011

HCT will be established in August 2012. The work of the Syria United Nations Country Team (UNCT) has traditionally been limited to development-oriented projects, including a number of projects targeting Palestine refugees and Iraqi refugees living in Syria. There are currently 10 UN agencies, IOM and 11 INGOs operational inside Syria. Of these, eight international NGOs are able to expand their operations from Iraqi response to supporting the affected Syrians, following an agreement between the Regional Humanitarian Coordinator (RHC) and the Government. Some sector working groups are operational and others will start soon.

TARGET 2012-13

The HCT/UNCT will support agencies to mobilize enhanced emergency capacity, and to realign existing activities to better support humanitarian needs. The HCT will establish all relevant Sector Working Groups to plan, implement and monitor project activities under the Humanitarian Response Plan. The HCT/UNCT will identify and engage with local NGOs able and willing to provide humanitarian assistance.

PROGRESS REPORT 2012

Establishing a formal HCT has not been possible in 2012, but UNCT meetings largely focused on humanitarian issues. Regular discussions with NGOs have ensured a shared understanding of the humanitarian situation and common views on the response strategy, as reflected in the Syrian Humanitarian Response Plan (SHRP). As a result, the delivery of assistance has improved, as shown by the increased number of people reached in Government and opposition-held or disputed areas.

Humanitarian coordination leadership is provided by the RHC. Scaling up the humanitarian response will require additional coordination capacity at sector/cluster level to support agencies' effective delivery of assistance. Additional coordination support is required at the regional level.

TARGET 2012-13

Client satisfaction surveys will be conducted in 2012. Stakeholders will express positive attitudes towards the delivery of the RHC, the HCT/UNCT and OCHA. Stakeholders will express satisfaction with dedicated forums for multi-stakeholder coordination, such as Syria Humanitarian Forums. Stakeholders will note the added value of decisions enhancing coordination leadership, including: the appointment of an RHC, the designation of RCs as HCs in countries affected by the Syrian crisis, and deployment of additional coordination support to HCs in support of their new roles.

PROGRESS REPORT 2012

In formal and informal discussions, the Government, donors and humanitarian partners have expressed their increased appreciation for the RHC and OCHA coordination leadership. Donors in particular appreciated the regular and candid briefings provided in Amman by the RHC and the Refugee Response Coordinator. The Syria Humanitarian Forum is perceived as the most inclusive and unique international coordination forum on Syria. However, many partners have asked for a further streamlining of coordination and leadership structure at the regional level. The high funding level of the OCHA office indicates widespread support to OCHA’s work in Syria.

Key partners of the OCHA Syria office assigned a high satisfaction index of 7.6 (out of 10) for OCHA’s coordination leadership.

OCHA has deployed international staff to support the RHC in coordinating identification of humanitarian needs, capacity and response options. Three CERF allocations have been coordinated across sectors to respond to immediate humanitarian needs. Humanitarian issues are regularly discussed and evidenced in UNCT/HCT decision-making.

TARGET 2012-13

Sector working groups or clusters will be established to ensure coordinated mapping of humanitarian needs, response and gaps. The RHC and RC, supported by the UNCT and OCHA, will establish robust planning and implementation capacity.

Established sector working groups will convene inter-sector discussions on a frequent and regular basis.

PROGRESS REPORT 2012

Sectorial working groups have been established and are working in all key areas. An inter-sector coordination mechanism has been established to ensure coherence and coordination across various areas. This group proved critical in the preparation of the 2013 SHRP. Two clusters, Logistics and Emergency Telecommunications were rolled-out in late November 2012. Although the roll-out of other clusters is on hold, OCHA has advocated sector/cluster lead agencies to deploy additional personnel to strengthen the coordination system. The current sector working groups work in the spirit of the clusters.

Result 2: A SHARED SITUATIONAL AWARENESS OF HUMANITARIAN NEEDS GUIDES A COMMON RESPONSE

Since the Government led rapid assessment further inter-agency assessments have not been conducted due to access limitations. Planning is based on estimates drawn from pre-crisis information, and data from the Syrian Arab Red Crescent and sector specific assessments which have started.

Target 2012-13

Joint assessments will be conducted across affected areas in Syria. Key humanitarian needs will be identified in each sector. These needs will inform sector working group/cluster planning and response. The SHRP will be revised as appropriate to better reflect planning and implementation requirements. Additional assessments will be conducted as areas become accessible.

PROGRESS REPORT 2012

Several inter-agency joint-assessments with the Syrian Arab Red Crescent (SARC) took place between October and November, and were reflected in the 2013 SHARP. Sector or geographical area-specific assessments also took place on a more ad hoc basis and were used to inform the response (e.g. Homs, education). However, widespread insecurity, continued lack of presence in key affected areas and lack of capacity have hampered efforts to lead more comprehensive joint assessments.

Indicator 5 Common response plan endorsed by the HCT fully reflecting priority needs in line with IASC-approved appeal policy and guidelines.

Baseline 2011

The joint humanitarian strategy and relief operations are outlined in the Syria Humanitarian Response Plan that seeks US$180 million for 44 projects to address the needs inside Syria in a variety of sectors.

Target 2012-13

As revised information on needs is sourced, agencies, sectors and the HCT/UNCT will revise planning and response to reflect any revisions to humanitarian priorities.

PROGRESS REPORT 2012

The UNCT’s revision of the 2012 SHRP took place in August and formed the basis of the 2013 SHARP covering January to June 2013, which was issued in December. It seeks $519 million to provide assistance to 4 million people over a six-month period.

Indicator 6 Per cent of an appeal’s requirements prioritised in the highest category.

Baseline 2011

Not applicable.

PROGRESS REPORT 2012

For SHARP 2013, prioritization was also undertaken by the inter-sector coordinating group based on life-saving interventions and time-critical activities.

Indicator 8 Level of satisfaction expressed by stakeholders with the IM products supporting the analysis and monitoring of the programme cycle.

Baseline 2011

No client surveys have been conducted.

The sensitivity of the Syrian Government limits the selection, development and distribution of IM products.

Target 2012-13

Client-satisfaction surveys show that 80 per cent of humanitarian stakeholders are satisfied with the quality of OCHA IM products, including biweekly humanitarian bulletins, 3Ws, snapshots, dashboard meeting calendars, survey of surveys and maps.

PROGRESS REPORT 2012

Informal discussions with partners, as well as official interventions during formal events, indicate increased appreciation for OCHA efforts to develop information management and reporting tools, including the humanitarian bulletin, 3W maps, dashboards and infographics.

Partners assigned OCHA Syria a satisfaction index of 6.9 (out of 10) for the quality and relevance of its IM and reporting products.

Result 3: A WELL-RESOURCED COMMON RESPONSE PLAN REGULARLY MONITORED

Indicator 9 Per cent of CERF allocations that are made towards highest priority projects.

Baseline 2011

CERF allocations have been made under the rapid response window.

Target 2012-13

100 per cent of CERF allocations are made towards the highest-priority projects; 100 per cent of ERF project allocations are made in accordance with agreed criteria (for sector working groups/clusters that have developed criteria).

PROGRESS REPORT 2012

CERF allocations ($46 million) were made according to priorities defined by the country team. All ERF project allocations ($10 million) were made according to the funds criteria.

Sector working groups are being strengthened and will work on sector response plans.

Target 2012-13

Sector working groups will be established, meet regularly and systematically share information on their discussion, activities and targets. Sectors will regularly review their planning and delivery against priorities laid out in the Humanitarian Response Plan.

PROGRESS REPORT 2012

Sector working groups participated in the draft of the 2013 SHARP. Each sector response plan presents projects that clearly show targets and expected outputs. However, monitoring and reporting on outputs and results remain unsystematic at this stage.

ERF Syria has been established. The project proposals are being considered and are being approved.

Target 2012-13

90 per cent of implementing partners will provide regular monitoring reports on delivery of project objectives. The Syria ERF will be run in full accordance with OCHA policies. OCHA will have established proper monitoring of ERF-funded projects.

PROGRESS REPORT 2012

All ERF projects are being monitored according to agreed monitoring plans.

A better mechanism for access for humanitarian processes will be developed and implemented. Limited, time-specific and pre-approved access will be available to more humanitarian actors, in an increased number of communities in need of assistance.

PROGRESS REPORT 2012

While no new formal access mechanism has been established, increased engagement with the parties and SARC has resulted in more systematic and wider access. By year-end, humanitarian partners reached millions of people in all affected Governorates. About 50 per cent of food distributions were occurring in opposition-held or disputed areas, highlighting the increasing reach of aid across the country.

Indicator 14 Number of arrangements to facilitate access developed and implemented through engagement with the relevant actors.

Baseline 2011

OCHA negotiated an agreement with the Government to allow the provision of humanitarian assistance to civilians affected by violence in Syria, greater involvement of national and international NGOs, and greater presence in the field.

Target 2012-13

OCHA will increase the number of actors with access to communities in need by supporting INGOs to develop humanitarian partnerships with SARC, and supporting INGOs and NGOs to develop and implement humanitarian projects in line with ERF funding requirements.

OCHA will strengthen the UN humanitarian field presence in selected field hubs.

OCHA will coordinate with the Government to secure streamlined access approval processes for humanitarian assistance.

PROGRESS REPORT 2012

A decision was made not to pursue the idea of a new formal mechanism to negotiate access, due to the risks of politicizing the issue. The establishment of humanitarian hubs was delayed due to increased insecurity. However, additional national partners were identified, and overall access improved in Government and opposition-held or disputed areas. Increased violence remained a key challenge.

Client survey not yet undertaken. Key stakeholders, such as Member States, regularly reference humanitarian access as a key challenge.

Target 2012-13

Client surveys will be conducted. Over 70 per cent will report being more informed on access.

OCHA will provide regular updates on access in forums such as donor briefings, humanitarian forums and documents such as access maps.

PROGRESS REPORT 2012

Stakeholders were kept informed on access issues through regular briefings, information products and informal discussions. This is also reflected in the high satisfaction score OCHA Syria received during the global OCHA partner survey (7.5 out of 10).

Result 5: STRATEGIC COMMUNICATION INFLUENCES A BROADER AGENDA

Indicator 16 Humanitarian principles and priorities are reflected in the strategies/plans of non-humanitarian actors.

Baseline 2011

Mass media commonly reference humanitarian issues and principles in reporting on the situation in the country.

Target 2012-13

Media coverage of the crisis will place the humanitarian agenda front and centre; Political actors will recognize and support the distinction between humanitarian and political discussions, interests and requirements; humanitarian priorities will be referenced in key political frameworks for Syria's future.

PROGRESS REPORT 2012

Humanitarian principles and priorities were regularly reflected in media and statements of political actors (UN departments, Joint-Special Envoy, Security Council or individual Member States). Despite a heavily politicized environment, OCHA’s discussions with key stakeholders resulted in an overall consensus to keep political and humanitarian discussions separate.

Indicator 17 Per cent of humanitarian partners viewing OCHA as effective in influencing the broader agenda.

Baseline 2011

Partners have not yet been surveyed.

Target 2012-13

A survey of partner views will be conducted at the end of each year. 80 per cent of partners will view OCHA as effectively influencing the broader agenda in and on Syria.

PROGRESS REPORT 2012

Key stakeholders of OCHA Syria assigned the office a satisfaction index of 6.3 (out of 10) for its efforts in strategic communication and advocacy.

Result 6: GOVERNMENTS AND HCT BETTER PREPARED TO COORDINATE AND RESPOND TO FUTURE EMERGENCIES

Indicator 18 Integration of international tools and services in national contingency plans and other government plans.

Baseline 2011

Not applicable.

Indicator 19 Inter-agency contingency plan in place to address new or resurgent emergencies.

Baseline 2011

OCHA established its first in-country presence in 2008, focusing on preparedness and contingency planning. This capacity enabled OCHA to lead inter-agency Contingency Planning for the Syria crisis in October 2011. The SHRP is a strengthened, operational version of the 2011 Contingency Plan.

Target 2012-13

The SHRP will be reviewed by the UNCT as appropriate. If the security situation in Syria stabilizes in the target period, a revised Contingency Plan will also be developed with the CT.

PROGRESS REPORT 2012

The SHRP was revised in 2012. Contingency plans are being regularly updated in neighbouring countries. A contingency plan for Syria was developed (October 2012-March 2013).

Result 7: RECURRENT HUMANITARIAN CONCERN ADDRESSED THROUGH LONGER-TERM DEVELOPMENT STRATEGIES

If the situation in Syria stabilizes, OCHA will ensure that the CT and sectors liaise with relevant development actors, so as to prepare transition and ensure development strategies are coordinated properly.

PROGRESS REPORT 2012

Not applicable given the deterioration of the situation and current impossibility to conduct development work in Syria.